Judge Thelton Henderson is one of the best known, and perhaps one of the most controversial judges, in the state, striking down Proposition 187, the anti-affirmative action measure, lashing out at state officials over the treatment of prisoners and giving veterans suffering from Agent Orange the right to sue. But he also has a fascinating past as a justice department lawyer in the 1960s working with Martin Luther King Jr. and other civil rights giants. measure, lashing out at state officials over the treatment of prisoners and giving veterans suffering from Agent Orange the right to sue. But he also has a fascinating past as a justice department lawyer in the 1960s working with Martin Luther King Jr. and other civil rights giants.

Photo: Mike Kepka, The Chronicle

Judge Thelton Henderson is one of the best known, and perhaps one...

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**FILE** In this undated file photo released by the California Department of Corrections, inmates sit in crowded conditions at California State Prison, Los Angeles. A special panel of federal judges tentatively ruled Monday, Feb. 9, 2009, that California must release tens of thousands of inmates to relieve overcrowding. The judges said no other solution will improve conditions so poor that inmates die regularly of suicides or lack of proper care. (AP Photo/California Department of Corrections)

California needs to release tens of thousands of California inmates over the next two to three years to relieve overcrowding that has ravaged prison medical and mental health care, a panel of federal judges said Monday.

In what it labeled a tentative ruling, the three-judge panel said prison populations must be reduced so health care for inmates can be brought up to constitutional standards.

Crowding at prisons can be eased by measures that will not flood the streets with dangerous inmates, such as changing parole policies and sending some low-risk inmates to county custody, the panel said.

"The evidence is compelling that there is no relief other than a prisoner release order that will remedy the unconstitutional prison conditions," said the judges, who held a trial on prison overcrowding in San Francisco last fall.

California's 33 prisons hold nearly 160,000 inmates, about twice their designed capacity. The judges said they were prepared to impose a limit of between 120 and 145 percent of capacity, which would require 37,000 to 58,000 prisoners to be released.

The Schwarzenegger administration immediately announced plans to appeal to the U.S. Supreme Court once the ruling becomes final.

Attorney General Jerry Brown, who represented the state, said the court "does not recognize the imperatives of public safety, nor the challenges of incarcerating criminals, many of whom are deeply disturbed."

But Donald Specter of the nonprofit Prison Law Office, a lawyer for inmates who sued the state, said the ruling validates the group's position that overcrowding is creating dangerous conditions that can be eased only by reducing the prison population.

"Much of the evidence showed that it's been done in other states without having any impact on public safety," Specter said. "It's safe, it's reasonable, it's necessary. It's too bad that it's taken a court to recognize this."

The case arose from past rulings by two of the panel members, U.S. District Judges Thelton Henderson of San Francisco and Lawrence Karlton of Sacramento, that concluded the quality of medical care and mental health treatment in California prisons violated the constitutional ban on cruel and unusual punishment.

Karlton first ordered improvements in mental health treatment in 1995, and Henderson found that prison health care had been substandard since at least 2002.

Unnecessary deaths

In a 2006 ruling, Henderson said the $1.1 billion medical care system was causing the unnecessary death of one inmate per week. He said the state was incapable of repairing the system and appointed a manager to run it under his supervision.

Gov. Arnold Schwarzenegger called for a return to state control last month. He also has appealed Henderson's order that the state pay the first $250 million of the manager's $8 billion plan to rebuild prison hospitals.

In Monday's decision, the panel, which also includes Judge Stephen Reinhardt of the Ninth U.S. Circuit Court of Appeals in San Francisco, agreed with lawyers for the inmates that "crowding is the primary cause" of the constitutional violations.

Because prisons are jammed beyond capacity, there aren't enough doctors and nurses to help all the inmates who need care, or enough staff to make sure they're taking medications, the panel said. Crowding at some prisons is so severe, with inmates being triple-bunked in gyms, that it has increased the risk of diseases spreading among prisoners and staff, the judges said.

They noted that Schwarzenegger declared a state of emergency for the prisons in 2006, citing overcrowding that endangered inmates and staff. That order remains in effect.

Prison crowding could be eased through a combination of increasing sentence reductions for good behavior, turning over low-risk prisoners to counties for incarceration or treatment, and changing parole policies that now return large numbers of inmates to prison for minor violations, the judges said.

They said the state would save nearly $1 billion a year, money that could be used for local prisoner housing and rehabilitation.

No help in sight

Although prison health conditions are improving under the direction of court appointees, the panel said, inmates are still suffering, with no immediate help in sight. Construction plans will take years to implement, even if the deficit-plagued state can find a way to pay for them, the panel said.

The judges ordered state officials to consult with the prisoners' lawyers and other parties in the case, including prison guards and county prosecutors, on any steps that might be taken to lower the prison population.

Specter, the inmates' lawyer, said he was prepared to resume negotiations, but added that "there's no point in talking" if Schwarzenegger maintains his refusal to consider any such measures.